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Globalisation and Cities : an Australian Political-Economic Perspective

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Globalisation and Cities : an Australian Political-Economic Perspective Globalisation and Cities: An Australian Political-Economic Perspective Frank Stilwell Urban Research Program Working Paper No. 59 January 1997 urban!Research program RESEARCH SCHOOL OF SOCIAL SCIENCES AUSTRALIAN NATIONAL UNIVERSITY Globalisation and Cities: An Australian Political-Economic Perspective Frank Stilwell Urban Research Program Working Paper No. 59 January 1997 SERIES EDITOR: R.C. Coles No. 59 EDITOR: Penelope Hanley Urban Research Program ISBN 0 7315 2552 3 Research School of Social Sciences ISSN 1035-3828 Australian National University Canberra, ACT 0200 © Urban Research Program, Research School of Social Sciences, Australian National University 1997 National Library of Australia Cataloguing-in-Publication data: Frank Stilwell 1944- . Globalisation and Cities: An Australian Political-Economic Perspective Bibliography ISBN 0 7315 2552 3. 1. City planning - Economic aspects - Australia. 2. Equality - Australia. 3. Australia - Social conditions - 1990- . 4. Australia - Economic conditions - 1990- . I. Australian National University. Urban Research Program. II. Title. (Series: Urban Research Program working paper; no. 59). 307.12160994 URBAN RESEARCH PROGRAM WORKING PAPERS The Urban Research Program is a part of the reorganised Division of Politics and Economics in the Research School of Social Sciences, which came into being in early 1990. Like its precursor, the Urban Research Unit, which was established in 1966, it carries out studies in the social sciences on Australian cities. Work undertaken in the Program is multidisciplinary and ranges widely over economic, geographic, historical, sociological, and political aspects of urban and regional structure and development, as well as more general areas of public policy. Working Papers are issued on an occasional basis with the intention of stimulating discussion and making research results quickly and easily available. Most papers will be published in final form elsewhere. In some cases, material will be published which, although of specialist interest, has no ready outlet. Working Papers represent the work of members of the Program or papers presented to a URP-sponsored seminar or conference. In most cases, the Working Papers are Australian in content or relevant to the Australian context. Proposed papers are subject to a preliminary internal review of a committee comprising the Series Editor and the Head of Program. If the review committee deems a paper suitable for possible publication, it is then sent to at least one external assessor for further comment. The views expressed in these papers are those of the authors and not the Urban Research Program. Series Editor: Rita C. Coles in Abstract This paper discusses the forces generating social-spatial change in Australian metropolitan areas. The external forces associated with the internationalisation of capital need to be disentangled from the internal policy changes associated with the adoption of ‘economic rationalist' policies. The former are intensifying various forms of spatial competition while the latter exacerbate tendencies to urban ‘market failure The manifestations of these structural political-economic changes are increasingly evident in Australian cities, including greater social-spatial inequalities. Effective urban planning is increasingly difficult in these conditions, compounded by the fiscal crisis of the state, the political pressures arising from the proliferation of urban social movements and the effect of international regulatory influences. The paper posits an alternative which shifts from beggar-thy-neighbour spatial competition to a more balanced economic, social and environmental strategy suited to Australian conditions and having potentially more widespread application. IV ACKNOWLEDGMENT Thanks to Rhys Jenkins, Bruce Moon and two anonymous referees for this working paper series for their comments on an earlier draft. GLOBALISATION AND CITIES: AN AUSTRALIAN POLITICAL-ECONOMIC PERSPECTIVE Frank Stilwell ‘Globalisation’ seems to be the buzz-word of the 'nineties. As in many other countries, Australian politicians, business leaders and media commentators recurrently talk of it as both inevitable and desirable. We are called on to accept the logic of closer international integration and to make the appropriate adjustments in economic and social structures. It is pertinent to ask what is the nature of ‘globalisation’ and what are its implications for the economy and society. For a nation like Australia, with a highly urbanised population distribution, it is particularly important to ask what are the urban impacts. To what extent are Australian cities being reshaped by the forces of ‘globalisation’? Can, and should, anything be done to control the processes of change? These are big issues and this paper does not purport to provide a comprehensive analysis. It explores some of the conceptual issues, empirical difficulties and political considerations involved in coming to grips with contemporary structural-spatial change. In this way it develops a framework of analysis for seeing ‘globalisation’ from a more critical political economy perspective. Illustrating some of the surface appearances of current urban restructuring is not difficult — the next section of the paper does so with particular reference to Sydney. Identifying the changes in the Australian economy which have been associated with its increased integration into international production, trade, investment and finance is rather more complex, particularly because there are problems of distinguishing recent developments from more long-established processes, as the following section of the paper notes. The conceptual difficulty which then arises is how to relate the two aspects urban spatial change and structural economic change. This is a major analytical problem: precedents exist in the development of regional studies (e.g., Stilwell 1980, Dicken 1986, Peet 1987, Fagan & Webber 1984) but there is no generally accepted framework of analysis. 2 Figure 1 provides the model which is used for organising the development of the argument in this paper. It is a framework for analysing how changes in international and macro-economic conditions interact with ‘the urban’, drawing attention to some contradictory political-economic aspects of the interactions. Subsequent sections of this paper then work through each of the ‘boxes’ in Figure 1. In this way we explore (i) the nature of ‘globalisation’ and its connection with ‘economic rationalism’, (ii) the forms of increased spatial competition, (iii) how ‘market failures’ impact on the intensity of urban problems, (iv) political responses to those urban problems and (v) some implications for urban planning, and the processes of regulation in general. First it is appropriate to set the scene by looking at some of the visible manifestations of urban restructuring. Figure 1: Framework for Analysing ‘Globalisation’and Cities 3 Urban Change: The Surface Appearances Dramatic changes are evident in Australian cities, both in their physical form and their socio-economic structures. Sydney is a striking case in point. The ‘mini-Manhattan’ skyline of its Central Business District (and its neighbour across the bridge in North Sydney) seems to be subject to continuous transformation. More modest buildings are periodically replaced by taller office towers — concrete and glass structures which accommodate the institutions of finance capital and symbolise its ascendancy. The nearby docklands host the comings and goings of container cargo ships but, since the development of the larger and more modem port facilities twelve kilometres south at Botany Bay, the bulk of the traffic no longer comes there. The traditional industrial facilities near the docklands are also disappearing rapidly as a result of deindustrialisation, decentralisation and urban renewal. Some warehouses have been converted to expensive apartments, with views over the beautiful harbour on which Sydney is situated. International capital features prominently in these re-development processes. In the areas adjoining the CBD the processes of change are also strikingly evident. The Darling Harbour area, formerly comprising storage facilities and railway yards to link with the port, has been redeveloped for retailing, recreational and tourist amenities, convention and exhibition centres, and new international hotels. It is not dissimilar in character to dockland redevelopments and ‘waterfront' leisure areas in many other cities — Baltimore, Boston, San Francisco, Cape Town, and so forth. The adjoining Ultimo-Pyrmont peninsula is currently the focus of Australia’s largest urban redevelopment project, a former working-class residential and industrial area being converted to mixed commercial and residential uses, with a huge casino promising to be its major money-spinner. Tourism — both domestic and international — is evidently a major element in Sydney’s urban restructuring. Darling Harbour and the casino are just a couple of points on a well-established ‘tourist trail’ connecting principal points of interests for the growing ranks of international and inter¬ state visitors. A focal point is the downtown Circular Quay area, bounded on either side by the Opera House and the Rocks and with numerous shops nearby featuring signs in Japanese. The Rocks district, saved from commercial redevelopment by resident action groups and progressive trade 4 unions in the 1970s, now presents the image of ‘old colonial’ Sydney (with an ersatz refurbishment). It illustrates
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